Page of BEFORE THE PUBLIC UTILITIES COMMISSION OF THE STATE OF COLORADO * * * * * IN THE MATTER OF THE APPLICATION OF PUBLIC SERVICE COMPANY OF COLORADO FOR APPROVAL OF ITS 0 ELECTRIC RESOURCE PLAN ) ) ) ) PROCEEDING NO. A-0E ) ) SUPPORTING TESTIMONY AND ATTACHMENTS OF DAVID L. EVES ON BEHALF OF PUBLIC SERVICE COMPANY OF COLORADO AUGUST, 0
Page of BEFORE THE PUBLIC UTILITIES COMMISSION OF THE STATE OF COLORADO * * * * * IN THE MATTER OF THE APPLICATION OF PUBLIC SERVICE COMPANY OF COLORADO FOR APPROVAL OF ITS 0 ELECTRIC RESOURCE PLAN ) ) ) ) PROCEEDING NO. A-0E ) ) SUMMARY OF THE SUPPORTING TESTIMONY OF DAVID L. EVES Mr. David L. Eves is President of Public Service Company of Colorado. As president of Public Service, he is responsible for the Company s overall operations. In his testimony, Mr. Eves provides support for the Stipulation Agreement ( Stipulation ) filed on August, 0 by the Stipulating Parties representing a diversity of interests. The Stipulation sets forth general parameters for the presentation of the Colorado Energy Plan Portfolio in the Phase II process of the Company s 0 ERP (in addition to consideration of the two resource need scenarios required by the Phase I Decision (i.e., the 0 MW need scenario and the updated demand forecast need scenario)), and a framework for the subsequent The Stipulating Parties are Public Service, the Colorado Public Utilities Commission Staff ( Staff ), the Colorado Office of Consumer Counsel ( OCC ); the Colorado Energy Office ( CEO ); the City of Boulder ( Boulder ); Climax Molybdenum Company ( Climax ); the Colorado Energy Consumers Group ( CEC ); Colorado Independent Energy Association ( CIEA ); the Colorado Solar Energy Industries Association ( COSEIA ), Interwest Energy Alliance ( Interwest ); Invenergy, LLC ( Invenergy ); Southwest Generation Operating Company, LLC ( SWG ); Rocky Mountain Environmental Labor Coalition and Colorado Building and Construction Trades Council, AFL-CIO (jointly, RMELC/CBCTC ); Vote Solar; and Western Resource Advocates ( WRA ).
Page of review and implementation of that portfolio. Mr. Eves requests that the Commission find the Stipulation to be in the public interest and approve it. The Colorado Energy Plan Portfolio is a response to our customers large and small, who have made clear to us that clean energy progress and emissions reduction are important while maintaining reliability and affordability. It is based on a voluntary proposal to retire coal-fired generation early and replace it with certain amounts of utility-owned and IPP-owned eligible energy resources, including wind and solar, and dispatchable and semi-dispatchable resources. The presentation of a Colorado Energy Plan Portfolio is driven by a desire to see if such a portfolio can save money for customers in the long-term on a present value basis by taking advantage of the federal PTCs and ITCs and retiring existing coal-fired generation to, among other things, free up transmission capacity for eligible energy resources. Additionally, the Colorado Energy Plan Portfolio is based on a voluntary application of a standard of review that requires the Colorado Energy Plan Portfolio to keep customers neutral or save customers money on a present value basis. This standard is consistent with and derived from the Executive Order D 0-0, Supporting Colorado s Clean Energy Transition, issued by Governor John Hickenlooper on July, 0, which discusses maximizing use of renewable energy without increased costs to customers. Mr. Eves testifies that the Executive Order puts in place a more stringent standard of review than the ERP Rules, which require a resource plan to be cost effective, i.e., the resources included in the resource plan can be acquired at a reasonable cost and rate impact. The difficult standard of not increasing costs to customers incents bidders in the Phase II
Page of competitive solicitation to sharpen their pencils and bring their very best proposals forward, which in turn buttresses the competitive spirit of the Phase II process. Mr. Eves explains that given the currently available federal tax credits for wind and solar, the recently issued Executive Order, and the upcoming Phase II competitive solicitation process, this is the right time for the Commission to allow for the opportunity to develop and present the Colorado Energy Plan Portfolio. The Colorado Energy Plan Portfolio consists of two primary components for which approval is sought in this ERP Proceeding and, attendant to the Colorado Energy Plan Portfolio, there are three additional approvals the Company plans to seek in separate proceedings to allow for its implementation. Overall, there are five elements of the Colorado Energy Plan Portfolio contemplated by the Stipulation:. A proposal to voluntarily retire Comanche ( MW) by the end of 0 and Comanche ( MW) by the end of 0 if the Colorado Energy Plan Portfolio is approved.. Satisfaction of utility ownership targets of: () 0 percent of the nameplate capacity of all eligible energy resources, and () percent of the nameplate capacity of all dispatchable and semi-dispatchable resources.. Acceleration of the depreciation expense for Comanche and Comanche and establishment of a regulatory asset to collect the incremental depreciation expense and related costs. Approval would be sought in a separate proceeding.. A reduction in Renewable Energy Standard Adjustment ( RESA ) collections from the current % down to %, likely beginning in 0 or
Page of 0. Approval would also be sought in a separate proceeding along with the accelerated depreciation and related approvals.. The development of a new switching station on the southern transmission system in Energy Resource Zone- ( ERZ- ) remote from the Comanche Substation. Approval would be sought in a separate proceeding to obtain a Certificate of Public Convenience and Necessity ( CPCN ) for the switching station. This would be a standalone proceeding separate from the application seeking approval of the accelerated depreciation and RESA reduction. Public Service understands and is sensitive to the fact that the early retirement of Comanche and Comanche will have impacts on certain of its employees and the local economy. Mr. Eves addresses the Company s commitment to working with Pueblo County, the City of Pueblo, the local community, and customers in this region of Colorado. Conversations have begun and seek to proactively address and develop an economic path forward if and when Comanche and Comanche retire early. Mr. Eves notes that southern Colorado is a strong location for eligible energy resources, with excellent solar and wind resource potential. Given the region s strength from this perspective, the Company anticipates receiving very competitive solar and wind bids located in southern Colorado in the Phase II competitive solicitation. If Public Service receives the competitive bids anticipated from this region, the most competitive of these bids are likely to be a part of the Colorado Energy Plan Portfolio. These new resources could provide significant benefits to this region.
Page of There will be a loss of tax revenue in the event of the early retirement of Comanche and Comanche. Nevertheless, by retiring Comanche and Comanche, the Company will free up approximately 0 MW of transmission injection capacity into its system, and the installation of the transmission switching station and any new solar, wind or natural gas generation units in southern Colorado would provide new tax revenues to the local taxation authorities. To the extent multiple generation units are bid and awarded in the Pueblo area, the local authorities may benefit from a significant increase in tax revenues over the next to 0 years. If proposed and approved, the Colorado Energy Plan Portfolio would continue the growth of renewable energy in the Company s energy mix. As shown in the figure below, the Company s renewables (wind, solar and hydro) could be as much as % of our energy mix by 0, increasing from approximately 0% in 0:
Page of Mr. Eves also quantifies how a Colorado Energy Plan Portfolio could perform as compared to the carbon emission reduction goals set forth in the Executive Order: Exec. Order Target Economy-wide multisector GHG target % below 00 by 0 Colorado Energy Plan Portfolio Estimated Result Public Service's emissions reductions would achieve about half of the total state economy's reduction need as expressed in tons by 0. The Company would achieve million short tons of reduction against a goal that requires million short tons of reduction by 0. Electric sector CO target % below 0 by 0 0% below 0 by 0 % below 0 by 0. Would exceed the 00 target Electric sector CO target % below 0 by 00 by ten percentage points. In sum, the Executive Order provides that [a]ppropriate state agencies shall work strategically with any interested electric utilities or cooperatives that, on a voluntary basis, would like to maximize its use of renewable energy, while maintaining reliability and without increasing costs to customers. The Stipulation in this proceeding represents a voluntary attempt by Public Service, in conjunction with a diverse group of stakeholders including Staff, OCC, CEO, industrial customers, IPPs, labor interests, and the environmental community, to do just that.
Page of BEFORE THE PUBLIC UTILITIES COMMISSION OF THE STATE OF COLORADO * * * * * IN THE MATTER OF THE APPLICATION OF PUBLIC SERVICE COMPANY OF COLORADO FOR APPROVAL OF ITS 0 ELECTRIC RESOURCE PLAN ) ) ) ) PROCEEDING NO. A-0E ) ) DIRECT TESTIMONY AND ATTACHMENTS OF DAVID L. EVES INDEX SECTION PAGE I. INTRODUCTION, QUALIFICATIONS, AND PURPOSE OF TESTIMONY II. BACKGROUND... A. THE STATE OF THE RECORD REGARDING COAL-FIRED GENERATION RETIREMENTS... B. LEGISLATIVE DISCUSSIONS... C. EXECUTIVE ORDER... D. DEVELOPMENT OF STIPULATION AGREEMENT WITH PARTIES... III. THE COLORADO ENERGY PLAN PORTFOLIO... A. ENERGY MIX TRANSITION ISSUES... 0 B. CEP PORTFOLIO COMPONENTS AND RELATED APPROVALS... C. VOLUNTARY RETIREMENTS AND RESOURCE NEED... D. COLORADO ENERGY PORTFOLIO OWNERSHIP PERCENTAGES... E. ACCELERATED DEPRECIATION OF COMANCHE AND COMANCHE... F. RESA REDUCTION TO %... G. ACCELERATED DEPRECIATION AND RESA REDUCTION INTERACTION... H. SWITCHING STATION PROPOSAL... IV. RESOURCE PLANNING CONSIDERATIONS... A. COLORADO ENERGY PLAN EVALUATION APPROACH...
Page of B. CPCNS AND COST RECOVERY FOR GENERATION FACILITIES... C. RULE 0(H) ISSUES... V. OTHER COLORADO ENERGY PLAN PORTFOLIO ISSUES... A. TRANSMISSION SYSTEM PERFORMANCE ISSUES... B. LABOR ISSUES... C. CO-OWNERS AND WHOLESALE CUSTOMERS... VI. CONCLUSION...
Page of LIST OF ATTACHMENTS Attachment DLE- Executive Order D 0-0 Attachment DLE- Revised Indicative ERP Phase II Timeline
Page of GLOSSARY OF ACRONYMS AND DEFINED TERMS Acronym/Defined Term Meaning AD/RR AFUDC CACJA CCPG CO COD CPCN CPP CSG CWIP DG ECA EPA ERP ERZ GDA GHG GRSA IPP ITC kw Accelerated Depreciation / RESA Reduction Allowance For Funds Used During Construction Clean Air Clean Jobs Act Colorado Coordinated Planning Group Carbon Dioxide Commercial Operation Date Certificate of Public Convenience and Necessity Clean Power Plan Community Solar Garden Construction Work In Progress Distributed Generation Electric Commodity Adjustment Environmental Protection Agency Electric Resource Plan Electric Resource Zone Generation Development Area Greenhouse Gas General Rate Schedule Adjustment Independent Power Producer Investment Tax Credit Kilowatt
Page of kwh MLEP MWh NO x PLA PTC Public Service or Company PVRR RAP RE Plan RES RESA Retail DG RFP SCR SO WACC Xcel Energy XES Kilowatt-hour Materially Less Expensive Portfolio Megawatt hour Nitrogen Dioxide Project Labor Agreement Production Tax Credit Public Service Company of Colorado Present Value Revenue Requirement Resource Acquisition Period Renewable Energy Plan Renewable Energy Standard Renewable Energy Standard Adjustment Retail Distributed Generation Request for Proposal Selective Catalytic Reduction Sulfur Dioxide Weighted Average Cost of Capital Xcel Energy Inc. Xcel Energy Services Inc.
Page of BEFORE THE PUBLIC UTILITIES COMMISSION OF THE STATE OF COLORADO * * * * * IN THE MATTER OF THE APPLICATION OF PUBLIC SERVICE COMPANY OF COLORADO FOR APPROVAL OF ITS 0 ELECTRIC RESOURCE PLAN ) ) ) ) PROCEEDING NO. A-0E ) ) SUPPORTING TESTIMONY AND ATTACHMENTS OF DAVID L. EVES I. INTRODUCTION, QUALIFICATIONS, AND PURPOSE OF TESTIMONY Q. PLEASE STATE YOUR NAME AND BUSINESS ADDRESS. A. My name is David L. Eves. My business address is 0 Larimer, Suite 0; Denver, Colorado 00. Q. BY WHOM ARE YOU EMPLOYED AND IN WHAT POSITION? A. I am employed by Public Service Company of Colorado ( Public Service or Company ) as President. Q. ON WHOSE BEHALF ARE YOU TESTIFYING IN THE PROCEEDING? A. I am testifying on behalf of Public Service. Q. PLEASE SUMMARIZE YOUR RESPONSIBILITIES AND QUALIFICATIONS. A. As President of Public Service, I am responsible for the Company s overall operations. In this role, I have been engaged in the Company s 0 Electric
Page of 0 Resource Plan. I have attached a description of my qualifications at the conclusion of my testimony. Q. WHAT IS THE PURPOSE OF YOUR SUPPORTING TESTIMONY? A. The purpose of my testimony is to provide support for the Stipulation Agreement ( Stipulation ) filed by Public Service, the Colorado Public Utilities Commission Staff ( Staff ), the Colorado Office of Consumer Counsel ( OCC ); the Colorado Energy Office ( CEO ); the City of Boulder ( Boulder ); Climax Molybdenum Company ( Climax ); the Colorado Energy Consumers Group ( CEC ); Colorado Independent Energy Association ( CIEA ); the Colorado Solar Energy Industries Association ( COSEIA ), Interwest Energy Alliance ( Interwest ); Invenergy, LLC ( Invenergy ); Southwest Generation Operating Company, LLC ( SWG ); Rocky Mountain Environmental Labor Coalition and Colorado Building and Construction Trades Council, AFL-CIO (jointly, RMELC/CBCTC ); Vote Solar; and Western Resource Advocates ( WRA ) (collectively, Stipulating Parties ) on August, 0. For the reasons discussed in my testimony, as well as those set forth in the Stipulation itself and the accompanying motion requesting Commission approval of the Stipulation, I am requesting that the Commission find the Stipulation to be in the public interest and approve it. Q. WHAT IS THE COMPANY REQUESTING IN THIS STIPULATION FILING? A. The Company and other Stipulating Parties seek an order from the Commission approving the Stipulation, which sets forth general parameters for the presentation of the Colorado Energy Plan Portfolio, as described
Page of 0 later in my testimony, in the Phase II process of the Company s 0 ERP (in addition to consideration of the two resource need scenarios required by the Phase I decision (i.e., the 0 MW need scenario and the updated demand forecast need scenario)), and a framework for the subsequent review of that portfolio. A final Commission decision regarding the Stipulation is requested no later than December, 0 in order to provide sufficient time for the Company to prepare its -Day Report. Q. WHAT TYPE OF INFORMATION IS INCLUDED IN YOUR SUPPORTING TESTIMONY? A. My testimony contains two general types of information. First, I address in detail the background leading up to the Stipulation and the specific parameters of the Stipulation itself. Second, throughout my testimony I address what could happen if the Stipulation is approved and we are given the opportunity to develop a Colorado Energy Plan Portfolio based on the bids received in the Phase II competitive solicitation. Much of this information and testimony is based upon projections given we have not yet received bids for generation resources. However, I provide this information to help the Commission understand the potential benefits of the Colorado Energy Plan Portfolio and inform the decision as to whether it should be presented in the -Day Report. Approval of the Stipulation would give the Commission an opportunity to evaluate a Colorado Energy Plan Portfolio that harnesses the benefits of cost effective renewable generation, which will take advantage of federal tax
Page of incentives for customers, while simultaneously providing economic development benefits and business opportunities. The Company anticipates that the overall bill impacts of the Colorado Energy Plan Portfolio will be neutral or will result in savings for customers, on a present value basis, and provide greater price certainty for customers by leveraging the unique opportunity created by the federal production tax credit ( PTC ) and investment tax credit ( ITC ) extension for customers. Moreover, we fully anticipate that the Colorado Energy Plan Portfolio, as I explain in more detail below, would continue to lower the overall emissions of the Public Service generation fleet. Q. DO YOU HAVE ANY ATTACHMENTS TO YOUR SUPPORTING TESTIMONY? A. Yes. I am sponsoring two attachments: Attachment DLE-, which is Governor Hickenlooper s Executive Order D 0-0, and Attachment DLE-, which is a revised indicative ERP Phase II timeline.
Page of II. BACKGROUND Q. WHAT IS THE PURPOSE OF THIS SECTION OF YOUR TESTIMONY? A. The purpose of this section of my testimony is to provide the Commission with relevant background leading up to the filing of the Stipulation. Specifically, I will explain why it is appropriate from a public policy perspective for the Commission to consider the resource portfolio described in the Stipulation as the Colorado Energy Plan Portfolio based on: () the record in this proceeding regarding the consideration of resource portfolios that include the early retirement of coal-fired generation, () legislative discussions that took place among elected officials and stakeholders during this past session of the General Assembly; () the issuance of Executive Order D 0-0, Supporting Colorado s Clean Energy Transition, by Governor John Hickenlooper on July, 0, and () the discussions among the parties to this proceeding that resulted in the filing of the Stipulation. A. The State of the Record Regarding Coal-fired Generation Retirements 0 Q. PLEASE PROVIDE SOME BACKGROUND ON THE RECORD IN THIS PROCEEDING WITH REGARD TO CONSIDERATION OF RESOURCE PORTFOLIOS THAT INCLUDE RETIREMENTS OF EXISTING GENERATION RESOURCES. A. CIEA was the primary party asserting that the Company should develop resource portfolios that include the retirement of existing coal-fired generation. As summarized by the Commission in Decision No. C-0 ( Phase I Decision ), CIEA requests that the Commission direct Public Service to model the acquisition of sufficient additional resources to permit the early retirement of a
Page of portion of its existing coal-fired generation resources, if doing so would create savings for customers. CIEA further argued that Strategist modeling has 0 0 previously been used by the Company in past ERP proceedings to examine early retirement of coal-fired generating units. Q. HOW DID THE COMPANY RESPOND TO THESE ARGUMENTS? A. Company witness Ms. Alice K. Jackson responded to these arguments in her rebuttal testimony, and Public Service also responded to these arguments in its Statement of Position. The passage below from Public Service s Statement of Position summarizes our response to CIEA s arguments and also provides background on proposed voluntary retirements of coal-fired generation resources considered in the past two ERPs: Like many areas of public utility regulation, the determination of the resource need to be filled in a particular ERP is not always as simple as applying the methodology in Rule. The need for additional generation resources may be the result of customer load growth, as contemplated in Rule, or the result of a reduction in generating resources due to contract terminations or utility proposals to retire existing generation resources (at the end of their useful lives or earlier). These early retirements may be voluntarily proposed by the utility or brought forward due to regulatory issues or directives from the General Assembly. For example, in the 00 ERP the Company voluntarily brought forward a proposal to retire certain Company-owned coal-fired generation resources and replace the capacity with a Company-owned gas-fired generation resource. The Commission explicitly recognized, however, that this proposal and filling the resource need created by the proposed retirements required additional determinations in addition to the ERP Rule requirements. The Commission granted Public Service s request to retire the coal-fired generation resources, and the Commission approved utility ownership of the replacement Decision No. C-0, at 0 (mailed Apr., 0). Decision No. C-0, at 0 (mailed Apr., 0).
Page of 0 0 capacity. A Phase II competitive solicitation was also conducted to fill the incremental resource need in that proceeding. Similarly, the resource need filled in the 0 ERP was not just limited to the incremental resource need derived from the Rule methodology. Two coal-fired generation resource retirements and the replacement of the associated capacity were at issue in that proceeding stemming from the requirements of HB -, known as the Clean Air-Clean Jobs Act ( CACJA ). The Commission ultimately approved the retirement of Arapahoe, a coal-fired generation resource, in the 0 ERP, and the Company s proposal to enter into a power purchase agreement ( PPA ) with an independent power producer ( IPP ) to replace this capacity (as well as a natural gas sales agreement). The proposal to replace the Company-owned Arapahoe unit with a PPA was proposed by Public Service through a standalone application, which was eventually consolidated with the 0 ERP proceeding. Both of these prior instances involved proposals by the Company to retire and replace utility-owned generation resources. No prior ERP has involved a bottoms up look at the existing generation fleet mandated by the Commission, where existing utility-owned and IPP-owned resources not slated for retirement or contract expiration within the RAP are evaluated for potential early retirement or termination and replacement sua sponte by the Commission. This type of analysis goes beyond the scope of the ERP Rules, as recognized by the Commission in the 00 ERP. Q. BASED ON THIS ANALYSIS, WHAT CONCLUSIONS DID THE COMPANY DRAW? A. Based on the analysis above, the Company concluded as follows in its Statement of Position: [A]s a high-level matter, the forced retirement of any existing resource, whether utility-owned or IPP-owned, and replacement of the resource through the ERP is outside the scope of the ERP and contrary to the ERP Rules unless: () the utility voluntarily proposes early retirement and replacement of the utility-owned resource (as in Proceeding No. 0A-E); () the General Assembly directs early retirement and replacement of the utility-owned resource (as Public Service Statement of Position, at - (filed Feb., 0) (internal citations omitted).
Page 0 of 0 in Proceeding No. A-E); () the IPP proposes early termination of a PPA and/or early retirement of an IPP-owned resource; or () the utility-owned resource or the IPP-owned resource will reach the end of its useful life (and will not be life extended) or contract term during the RAP. Q. DID THE COMMISSION ADDRESS THESE FOUR CIRCUMSTANCES IN ITS PHASE I DECISION? A. The Commission did not directly address the Company s Statement of Position language regarding generation retirement in the Phase I Decision. The Commission held that it would not require Public Service to conduct CIEA s proposed analysis of early coal plant retirements in this ERP. However, the Commission further noted it intend[ed] to open a rulemaking to modify the ERP Rules. We may examine potential changes to the provisions for evaluating existing resources pursuant to Rule CCR --0 with respect to plant retirements and replacement capacity based on the experience gained in recent ERPs and other proceedings such as the Clean Air-Clean Jobs Act proceedings in 0. Q. IS THE STIPULATION FILED IN THIS PROCEEDING CONSISTENT WITH ONE OF THE FOUR CIRCUMSTANCES OUTLINED BY THE COMPANY IN ITS STATEMENT OF POSITION? A. Yes. The Stipulation falls squarely within the first set of circumstances outlined in our Statement of Position. Pursuant to the Stipulation, we are seeking the permission of this Commission to bring forward the Colorado Energy Plan Public Service Statement of Position, at - (filed Feb., 0) (internal citations omitted). Decision No. C-0, at (mailed Apr., 0). Decision No. C-0, at (mailed Apr., 0).
Page of 0 Portfolio as a resource portfolio for Commission consideration in Phase II of this ERP proceeding. The Colorado Energy Plan Portfolio includes voluntary retirements of two coal-fired generating units conditioned on the satisfaction of certain utility ownership percentage targets of eligible energy resources and dispatchable and semi-dispatchable resources in the Phase II competitive solicitation and approval of other associated actions. Accordingly, the Stipulation contemplates a situation where the utility voluntarily proposes early retirement and replacement of the utility-owned resource (as in Proceeding No. 0A-E). Q. DID THE COMMISSION ADDRESS ALTERNATIVE TYPES OF RESOURCE PORTFOLIOS IN THE PHASE I DECISION? A. Yes. In Paragraph of the Phase I Decision, the Commission stated: [B]ecause it is the Commission s preference to consider resource acquisitions in an ERP context, we permit Public Service to present in its -Day Report an alternative portfolio that includes additional resources in excess of the calculated resource need. Proposed acquisitions in excess of the need must be shown to benefit customers over the Planning Period. This indicated a willingness to consider alternative types of resource portfolios in this proceeding given the Commission s preference to evaluate resource acquisitions in ERP proceedings. Public Service is not proposing to present the Colorado Energy Plan Portfolio pursuant to Paragraph and we acknowledge that the Colorado Energy Plan Portfolio does not fall squarely within it. However, the notion of an alternative resource portfolio discussed in Paragraph provides Public Service Statement of Position, at (filed Feb., 0). Decision No. C-0, at (mailed Apr., 0).
Page of support in the record for different types of portfolios to be submitted in the - Day Report. Q. DO THE STIPULATING PARTIES AGREE THAT THE PRESENTATION OF THE COLORADO ENERGY PLAN PORTFOLIO IS CONSISTENT WITH THE RECORD IN THIS PROCEEDING? A. Yes. The Stipulation contains a section on this very point. The Stipulating Parties agree that given the discussion of resource portfolios that include early retirements of coal-fired generation, coupled with the Commission s stated willingness to evaluate different types of resource portfolios in this proceeding, it is consistent with the record in this proceeding to evaluate the Colorado Energy Plan Portfolio if it is brought forward by the Company. B. Legislative Discussions 0 Q. WERE THERE DISCUSSIONS REGARDING TAKING ADVANTAGE OF FEDERAL TAX CREDITS FOR ELIGIBLE ENERGY RESOURCES AND POTENTIAL TRANSITION OF THE CURRENT GENERATION FLEET DURING THE LEGISLATIVE SESSION? A. Yes. The extension of the PTC and ITC by the U.S. Congress and the ability of investor-owned utilities to take full advantage of the extension to the benefit of customers was under discussion during the 0 session of the General Assembly. Specifically, elected officials, policymakers, and stakeholders considered approaches to acquire resources that benefit from the PTC and ITC at their highest levels and transition the generation fleet towards a less carbonintensive resource mix. This transition could have included the early retirement of
Page of coal-fired generation resources. The central theme and point of the discussions was to provide savings to customers by taking advantage of the federal PTCs and ITCs and retiring existing generation to, among other things, free up transmission capacity for eligible energy resources. These discussions did not involve any expansion of Commission authority to be able to evaluate proposals because such an expansion was unnecessary. While legislation was never introduced, the discussions with stakeholders and policymakers were helpful as we considered our plans as a Company and evaluated next steps with regard to our generation fleet. C. Executive Order Q. PLEASE BRIEFLY DESCRIBE THE EXECUTIVE ORDER ISSUED BY GOVERNOR HICKENLOOPER ON JULY, 0. A. The Executive Order is included with my supporting testimony as Attachment DLE-. The stated purpose of the Executive Order is to support Colorado s transition to cleaner energy resources. However, costs to customers and the 0 opportunity to harness savings for customers are also integral parts of the Executive Order. To that end, the Executive Order discusses savings available due to the decline in wind and solar prices, low natural gas prices, and the availability of PTCs and ITCs for eligible energy resources. Accordingly, [n]ow is the time to accelerate the transition to a clean energy economy while maintaining Colorado's position as one of the lowest energy cost states in the nation. Attachment DLE-, at. Attachment DLE-, at.
Page of Q. DOES THE EXECUTIVE ORDER INCLUDE SPECIFIC EMISSION REDUCTION GOALS? A. Yes. The Executive Order includes an economy-wide greenhouse gas emission reduction goal of more than % by 0 as compared to 00 levels. It also includes carbon dioxide emission reduction goals specific to the electricity sector. The first electricity sector goal is a % reduction in carbon dioxide emissions by 0 as compared to 0 levels. The second electricity sector goal is a % reduction by 00 as compared to 0 levels. The Executive Order also directs the Colorado Department of Natural Resources to amend the Colorado Climate Plan by October, 0, to incorporate these emission reductions goals. Q. ARE THERE ANY OTHER DIRECTIVES IN THE EXECUTIVE ORDER GERMANE TO THIS PROCEEDING AND THE STIPULATION? A. Yes. The Executive Order provides that [a]ppropriate state agencies shall work strategically with any interested electric utilities or cooperatives that, on a voluntary basis, would like to maximize its use of renewable energy, while maintaining reliability and without increasing costs to customers. The 0 Stipulation in this proceeding represents a voluntary attempt by Public Service, in conjunction with a diverse group of stakeholders including Staff, OCC, CEO, industrial customers, IPPs, labor interests, and the environmental community, to do just that. Attachment DLE-, at. Attachment DLE-, at. Attachment DLE-, at.
D. Supporting Testimony and Attachments of David L. Eves Page of Development of Stipulation Agreement with Parties 0 Q. PLEASE PROVIDE A BRIEF BACKGROUND ON THE DEVELOPMENT OF THE STIPULATION IN THIS PROCEEDING. A. Discussions among the parties in this proceeding began earlier this summer as the Company took stock of its discussions during the legislative session and the arguments made by parties to this proceeding regarding the development of resource portfolios that include the early retirement of coal-fired generating resources. The Company began evaluating the development of a resource portfolio for Commission consideration that would include the voluntary early retirement of Comanche and Comanche. As with past voluntary retirement proposals in the ERP context, the Company also wanted to target certain ownership levels for generation in the portfolio. The Company then commenced discussions among the parties to this proceeding to discuss this proposal. Q. WHAT DID THE COMPANY LEARN FROM ITS OUTREACH EFFORTS? A. The outreach confirmed what we heard during our legislative session discussions and during the Phase I litigation in this proceeding, i.e., there was support for developing a resource portfolio in the Phase II process that included, among other things, voluntary early retirements of coal-fired generating units and ownership percentage targets for eligible energy resources and dispatchable and semi-dispatchable resources. Most importantly, the parties were interested in seeing if the Company could develop such a portfolio without increasing costs to
Page of customers, as provided for in the Executive Order. Further, the parties found the proposed development of the Colorado Energy Plan Portfolio attractive because it is consistent with the Commission s preference to consider resource acquisitions in an ERP context while fully meeting the carbon dioxide emission reduction targets set forth in the Executive Order. Q. WHAT WAS THE RESULT OF THE OUTREACH EFFORTS? A. After these individual outreach meetings, the Company convened group discussions around an approach to bring the resource portfolio to the Commission. Through negotiation, we were able to reach agreement with many of the parties to this proceeding resulting in the Stipulation. I will address the details of the Stipulation later in my testimony, but to briefly summarize, it is supported by a diverse group of stakeholders and is consistent with the record in this proceeding. As a result of the Stipulation, the Stipulating Parties propose that the Company have an opportunity to develop a resource portfolio that includes the retirements of two existing utility-owned coal-fired generating units, Comanche and Comanche, and replacement of these units and satisfaction of the broader resource need identified in Phase I in this proceeding with a balanced mix of utility-owned and IPP-owned eligible energy resources and dispatchable and semi-disptachable resources. Attachment DLE-, at. See, e.g., Decision No. C-0, at (mailed Apr., 0). The Commission has stated this preference in several recent proceedings.
III. Supporting Testimony and Attachments of David L. Eves Page of THE COLORADO ENERGY PLAN PORTFOLIO 0 Q. WHAT IS THE PURPOSE OF THIS SECTION OF YOUR TESTIMONY? A. The purpose of this section of my testimony is to provide a brief background on the Colorado Energy Plan Portfolio, followed by a discussion of issues related to the energy mix contemplated by the Colorado Energy Plan Portfolio. I then address the components of the Colorado Energy Plan Portfolio and related approvals we require in separate proceedings in order to implement the Colorado Energy Plan Portfolio. These approvals in separate proceedings, as I explain in more detail below, would be contingent upon the Commission ultimately selecting the Colorado Energy Plan Portfolio as its approved portfolio in the Phase II process in this proceeding. Q. WHY DOES THE COMPANY BELIEVE IT IS APPROPRIATE TO PRESENT THE COLORADO ENERGY PLAN PORTFOLIO FOR COMMISSION CONSIDERATION? A. The presentation of a Colorado Energy Plan Portfolio is driven by a desire to see if a portfolio that retires existing utility-owned assets and replaces them with certain amounts of utility-owned and IPP-owned eligible energy resources and dispatchable and semi-dispatchable resources can save money for customers in the long-term on a present value basis. Q. WHY IS IT APPROPRIATE TO INCLUDE UTILITY OWNERSHIP TARGETS AS PART OF ANY COLORADO ENERGY PLAN PORTFOLIO? A. A generation resource mix that includes a balance of utility-owned and IPPowned resources can benefit and protect customers. Through this Stipulation, the
Page of 0 Company seeks the ability to propose to voluntarily retire existing utility-owned generation resources and develop a portfolio of generation resources that will not increase costs to customers and save customers money over the long-term. All resources will be acquired through the ERP Phase II competitive bidding process. Under these circumstances, it is appropriate to provide for ownership percentage targets for the resources acquired to fill the resource need and replace the retiring generation resources. The Company anticipates that the market will provide bids for utility ownership and IPP ownership that will allow for the development of a Colorado Energy Plan Portfolio that meets the ownership percentage targets and saves customers money over the long-term. Finally, the expanded resource need will provide expanded opportunities for the IPP community in Colorado, which I discuss later in my testimony. Q. IF THE COMPANY IS RETIRING EXISTING RESOURCES EARLY AND ADDING NEW RESOURCES, HOW COULD A COLORADO ENERGY PLAN PORTFOLIO KEEP CUSTOMERS NEUTRAL OR SAVE MONEY FOR CUSTOMERS? A. In analyzing the potential costs and benefits of an early retirement of Comanche and Comanche, replaced by a combination of additional wind, solar and natural gas resources, one must look at all of the cost components that are currently included in electric customer rates and what will be included in the future with the updated generation portfolio. These costs generally fall within four primary categories:
Page of 0 Original and on-going capital costs On-going operating and maintenance costs Purchased fuel and delivery costs Purchased energy and capacity costs With early retirement, customers avoid paying: () the capital and on-going operating and maintenance costs of Comanche and Comanche between early retirement and the current useful life; and () the cost of coal and rail deliveries to the plant during this same time period. Therefore, with the proposed early retirement, customers avoid paying these categories of costs associated with Comanche and Comanche. In place of the coal-fired generation and the energy produced by these two units, customers would pay the costs of an updated portfolio of generation resources. Based on preliminary projections, the Company anticipates being able to develop a portfolio of resources, including wind, solar, and natural gas generation, with an average cost that is less than the cost of Comanche and Comanche on a $/MWh basis. In addition, the updated portfolio will include new generation assets that will serve customers another to 0 years, and reduce the risk of additional future customer costs by eliminating the possible need for additional emission control equipment on Comanche and. Moreover, the updated portfolio will reduce the risk of future carbon costs and capture the benefits of today s federal tax credits.
A. Energy Mix Transition Issues Supporting Testimony and Attachments of David L. Eves Page 0 of Q. HOW WILL THE COLORADO ENERGY PLAN PORTFOLIO CHANGE THE COMPANY S ENERGY MIX? A. If proposed and approved, the Colorado Energy Plan Portfolio would continue the growth of renewable energy in the Company s energy mix. The Company s renewables (wind, solar and hydro) could be as much as % of our energy mix by 0, increasing from approximately 0% in 0. The remaining energy mix would be about half coal and about half natural gas that is, approximately one quarter for each of our total system energy. These numbers are based on current best estimates and could also be influenced by future resource plans. Figure DLE- below shows a projected energy mix in 0 if the Colorado Energy Plan Portfolio is approved by the Commission. FIGURE DLE-
Page of 0 Q. WHAT ENVIRONMENTAL BENEFITS COULD THE COLORADO ENERGY PLAN PORTFOLIO YIELD? A. The Colorado Energy Plan Portfolio seeks to decrease coal-fired generation and increase zero-emission generation from eligible energy resources such as wind and solar in the Company s generation fleet. This transition will significantly reduce carbon dioxide (CO ) emissions, nitrogen oxide (NOx) emissions, and sulfur dioxide (SO ) emissions. With the implementation of the Colorado Energy Plan Portfolio, we estimate that Public Service s CO emissions could be 0% lower in 0 than in 00. This emissions trajectory is consistent with reductions anticipated under forecasts of global and U.S. emissions reductions needed to achieve international climate targets. We also anticipate that SO and NOx emissions could be about 0% lower than 00 by 0. The emissions of SO and NOx from the coal units at the Comanche site should be roughly 0% lower than 00 as well. Q. IS THE COLORADO ENERGY PLAN PORTFOLIO CONSISTENT WITH GOVERNOR HICKENLOOPER S EXECUTIVE ORDER D 0-0 SUPPORTING COLORADO S TRANSITION TO CLEANER ENERGY RESOURCES? A. Yes. The Executive Order sets forth three greenhouse gas ( GHG ) emissions targets: an economy-wide greenhouse gas reduction target of % below 00 (i.e., it applies to the entire Colorado economy and not just a particular sector), a power sector CO reduction target of % below 0 levels by 0, and another power sector CO reduction target of % below 0 levels by 00.
Page of The Colorado Energy Plan Portfolio and the retirements of Comanche and Comanche could allow the Company to comfortably surpass the 0 and 00 power sector CO reduction targets, as shown in Table DLE- below. In fact, we anticipate that our emissions would be % below 0 levels by 0, which is ten percentage points below the 00 target, and accomplished four years early. TABLE DLE- EXECUTIVE ORDER D 0-0 AND ESTIMATED RESULTS OF THE COLORADO ENERGY PLAN Exec. Order Target Economy-wide multisector GHG target % below 00 by 0 Colorado Energy Plan Portfolio Estimated Result Public Service's emissions reductions would achieve about half of the total state economy's reduction need as expressed in tons by 0. The Company would achieve million short tons of reduction against a goal that requires million short tons of reduction by 0. Electric sector CO target % below 0 by 0 0% below 0 by 0 Electric sector CO target % below 0 by 00 % below 0 by 0. Would exceed the 00 target by ten percentage points. Further, our estimates show that the Colorado Energy Plan Portfolio could drive the Company to accomplish roughly half of the needed reductions to meet the State s overall economy-wide GHG reduction target. Based on the 0 Colorado Greenhouse Gas Inventory, the percent economy-wide reduction target by 0 requires about million short tons of GHG reduction from 00 levels of. million short tons ( million metric tons) of CO -equivalent
Page of statewide GHG emissions. The Colorado Energy Plan Portfolio, adding to 0 reductions we have accomplished from our renewables and energy efficiency efforts since 00, the Clean Air-Clean Jobs Act program, and the Rush Creek Wind Project, could reduce our emissions from 00 levels by million short tons, roughly half of the State s targeted economy-wide GHG reduction, by 0. Under the Colorado Energy Plan Portfolio, we anticipate that the Company would lead Colorado in emissions reduction, as we have long done. Best of all, we think this can all be done while keeping customers neutral or providing savings to customers on a present value basis. Q. IF PRESENTED AND APPROVED BY THE COMMISSION, COULD THE COLORADO ENERGY PLAN PORTFOLIO AVOID FUTURE EXPENDITURES TO RETROFIT COMANCHE AND WITH EMISSIONS CONTROL EQUIPMENT? A. Yes, that is possible. Notably, Comanche and Comanche are the last coalfired generating units on our Colorado system that do not have, or have plans to install, selective catalytic reduction ( SCR ) controls to reduce NOx emissions. While there are no immediate requirements to install SCRs on these units, further environmental control requirements are certainly possible during the current expected plant lives, which end in 0 for Comanche and in 0 for Comanche. Colorado Department of Public Health & Environment, Colorado Greenhouse Gas Inventory 0 Update, October 0.
Page of 0 For instance, the Environmental Protection Agency ( EPA ) and states are just beginning the second planning period for the Regional Haze program under the Clean Air Act. The Regional Haze program seeks to improve visibility in national parks and wilderness areas, and has been a driver of requirements for environmental controls on coal plants throughout the United States. Requirements for more stringent NOx reductions at Comanche and are a possibility under that program. Ground-level ozone ambient air quality standards have also become more stringent over time, and the Denver metropolitan area has struggled to achieve the ozone standard for years. Through some combination of a more stringent federal ozone standard, the creation of new ozone non-attainment regions including or near the Comanche site, or the linkage of Comanche NOx emissions to the Denver metro area s ozone nonattainment, it is plausible that Comanche and Comanche could be required to install SCRs to reduce emissions of NOx, a known ozone-forming precursor, before their scheduled retirement dates. Our current estimates suggest that installing SCRs on both Comanche and Comanche would cost a total of approximately $ million dollars. Q. COULD IMPLEMENTATION OF THE COLORADO ENERGY PLAN PORTFOLIO HELP PUBLIC SERVICE MANAGE FUTURE CARBON REGULATION? A. Yes. A Colorado Energy Plan Portfolio could help us to reduce the risks of future carbon regulation by carrying our current expected emissions reductions pathway of % below 00 levels by 0 further into the future. While future carbon
Page of 0 regulation is hard to predict, the Commission has required us to analyze resource portfolios factoring in potential carbon pricing for more than a decade. Further, the Commission ordered in the Phase I Decision in this proceeding that we analyze resource portfolios using three different carbon price sensitivities, including a carbon externality value based on the federal Social Cost of Carbon. Q. IF THIS STIPULATION IS APPROVED BY THE COMMISSION AND A COLORADO ENERGY PLAN PORTFOLIO IS PRESENTED BY THE COMPANY IN THE -DAY REPORT, WILL THE COMPANY ANALYZE IT WITH THESE THREE CARBON PRICE SENSITIVITIES? A. Yes, we will analyze the Colorado Energy Plan Portfolio through all sensitivities required by the Phase I Decision including the carbon price sensitivities. While the Colorado Energy Plan Portfolio economics do not rely on these carbon adders, the Colorado Energy Plan Portfolio will also be subject to the carbon cost sensitivity analyses required by the Phase I Decision. These sensitivity analyses will provide additional information regarding the potential savings associated with the Colorado Energy Plan Portfolio for the Commission to consider in its evaluation. Q. WHY IS IT IMPORTANT TO REDUCE CO EMISSIONS? A. Regulation of carbon dioxide has been on the nation s agenda in one form or another for almost two decades. This agenda has included international agreements, proposed legislation and regulation. Although federal carbon policy has long been controversial and is uncertain today, we believe that federal climate policy as an issue is not going away. While I would acknowledge that
Page of 0 EPA under the Trump administration is unlikely to continue to pursue the Clean Power Plan, EPA may pursue an alternative pathway to meet its obligation to regulate CO emissions. Future Presidential Administrations and the EPA may follow suit or create more aggressive Clean Air Act-driven CO reduction programs. Federal climate legislation also remains a possibility at some point in the future. In light of the fact that Public Service and other utilities must plan for carbon reductions years in advance, we believe it is prudent to continue to pursue cost-effective emission reductions such as those proposed in this plan. Further, in addition to the State s GHG and CO reduction targets within Executive Order D 0-0, we find that our communities, customers, and investors are concerned about this issue. In Colorado, numerous communities Denver, Pueblo, Aspen, Boulder, Nederland, Lafayette and Frisco -- now support 0% renewable or clean energy goals. We ve also surveyed individual customers, and a majority of the Company s customers and citizens of Colorado surveyed support clean energy progress and emissions reduction. The support for increasing clean energy is especially strong, if not overwhelming, when the survey questions include a statement that reliability and affordability must be maintained. These survey results are summarized in Figure DLE- below. The Colorado Energy Plan Portfolio is intended to support exactly that outcome: increasingly clean energy without increasing bills.
Page of FIGURE DLE- Results From Colorado Statewide Voter Survey: Percentage of Survey Respondents Supporting These Statements, June 0 % Coal use should be decreased % Colorado utilities should increase clean renewable energy If it means no increase in energy costs % The state of Colorado and utilities should reduce carbon emissions while providing reliable and affordable energy % The state of Colorado and utilities should work together to achieve the most significant increases in the use of clean renewable energy that can be accomplished while providing reliable and affordable energy Finally, Xcel Energy Inc. ( Xcel Energy ), Public Service s holding company parent, has also seen investor interest in these issues increase. Attracting and retaining investors helps to keep our cost of capital down, which allows us to serve Colorado s customers more cost-effectively. In the last shareholder proxy season, ballot initiatives requiring utilities to conduct risk analysis around carbon regulation were proposed on several U.S. utility Colorado Statewide Energy Survey, Keating Research. http://keatingresearch.com/wpcontent/uploads/0/0/keating-research-colorado-statewide-survey-july--release.pdf. Survey funded by Xcel Energy. June 0.
Page of 0 shareholder proxies, and received more than 0% of investor votes. Due partially to our strong leadership in carbon reduction, Xcel Energy has not yet faced a climate-related ballot resolution from our investors. The development of the Colorado Energy Plan Portfolio, like other actions Public Service and other operating companies are developing across the Xcel Energy footprint, drives down emissions-related financial risks and helps the Company to proactively manage those investor concerns. We see strong interest in a transition to cleaner energy from these crucial stakeholders. When there is an opportunity like the development of the Colorado Energy Plan Portfolio to reduce emissions while avoiding bill increases, we think that is something we need to pursue. Q. TURNING TO THE JOB IMPACTS OF THE POTENTIAL EARLY RETIREMENT OF COMANCHE AND COMANCHE, HOW MANY JOBS AT THESE UNITS WOULD BE AFFECTED? A. The retirement of Comanche and Comanche would affect approximately 0 employees that work at these units from today s staffing levels. These employees have been informed of the potential early retirement of Comanche to occur no later than 0 and Comanche no later than 0. We will work to find other opportunities for these employees within the Company, including at other generating resources that require these employees specific expertise. However, it is possible we will not find new opportunities within the Company for these employees.